REPORT 



JOINT SPECIAL COMMITTKE 



EASTEEN AVEIS^FE 




BOSTON: 

J. E. FARWELL & CO., CITY PRINT KRS 

No. 32 Congress Street. 

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City Document. — No. 58. 

/ 





REPORT 



JOINT SPECIAL COMMITTEE 



EASTEEN AVENUE 

18 6 1. 



In Board of Aldermen, September 30, 1861. 
Laid on the table, and ordered to be printed. 



Attest ; 



S. F. McCLEAEY, City Clerk. 






J. E. Far 



well & Co., City Printers, No. 32 Congress Street. Boston. 



CITY OF BOSTON 



In Board of Aldermen, September 30, 1861. 
The Joint Special Committee, to Avliom was referred the sub- 
ject of constructing a new Avenue to South Boston, submit the 
following 

E E P R T . 

The Committee have given to this subject an unusual amount 
of investigation, on account of the importance of the subject, the 
number and respectability of the petitioners, and the favora- 
ble recommendations of the committees of former City Councils. 
The further we have proceeded in our investigation the more 
have we been satisfied that the construction of a direct avenue 
from some central portion of the City to so extensive a territory 
as the South Boston peninsula, will be of great pecuniary benefit 
to the City, and that the public exigencies demand its speedy com- 
pletion. Being satisfied that, from the necessity of the case, such 
an avenue must eventually be built by the City, and that the 
sooner it is built the more speedy will the City receive its attend- 
ant benefits, your Committee have had less hesitancy in recom- 
mending an immediate commencement of the work, from a 
consideration which will be fully appreciated by the City Govern- 
ment and by the citizens at large. This is, that the construction 
of this avenue will give immediate employment and relief to 



4 CITY DOCUMENT. — No. 58. 

thousands of laborers in the City who will otherwise suffer fi'om 
extreme destitution through the coming winter. There is no 
other public work, except building streets, upon which laborers 
can be employed, and we are of the opinion that it is the impera- 
tive duty of the City Government to do something for the relief 
of those who must be supported as paupers if judicious aid is not 
given noiv. We do not believe that it is wise or prudent for the 
City Government to remain indifferent and inactive, while every 
one can see that the want of work will drive thousands to the 
Almshouse during the approaching winter. 

The City is bound by law to provide for the support of the 
poor within its limits, and we believe it is much more prudent, 
and that we shall best fulfil the duty of a government, by antici- 
pating and preventing poverty and suffering, and by keeping 
honest and industi'ious laborers from the Almshouse. Prompt 
and energetic measures, in such times as these, are the only pru- 
dent ones. Although we place this subject first, because it should 
be first at this emergency in the minds of every citizen, we are 
aware that this of itself would not be a sufficient cause for the 
particular work we recommend. We therefore proceed to state 
the reasons which seem to make the proposed avenue a matter of 
public convenience and necessity, and to justify a much larger 
expenditure even than will be required, and under the present 
circumstances we cannot but deem it fortunate that there is a 
great public enterprise waiting to be commenced which will 
furnish the needed employment, and at the same time be a 
judicious expenditure for the City. That the proposed avenue 
is a matter of public convenience and necessity, and a proper 
enterprise to be undertalien, we think is evident fz-om the fol- 
lowing reasons : — 

First. The public convenience and necessities of South 
Boston, (comprising a population to about thirty thousand in 
number,) require a new and more direct avenue to tlie centre 
of the City. 

Second. An examination of the records of the City shows 



EASTERN AVENUE. 5 

that South Boston has received a singularly small and dispro- 
portionate share of the money expended for highways and 
streets. 

Third. This great public improvement will give an imme- 
diate and positive value to the lands owned by the City at South 
Boston, much larger than the amount of outlay required. 

Fourth. The construction of this avenue will be of a great 
and permanent benefit to the harbor of Boston. 

Fifth. It will add immense sums to the taxable property of 
the City, by developing a worthless waste of flats of over a mile 
in extent, and changing it to useful and valuable property. 

SLvth. It will bring the City lands three quarters of a mile 
nearer to the City Hall. 

Seventh. By thus giving direct communication, it will give 
those healthy and desirable building sites, which are so much 
needed at this time to check the constant and dangerous drain 
upon our tax-paying population, which is so injurious to us, and 
so beneficial to the suburban towns in the vicinity of Boston. 

Eighth. This improvement will enhance the valuation of the 
City, and diminish largely the fro rata tax on property. 

Taking up these reasons more in detail, your Committee 
would state that, in their judgment, there can be little doubt 
that the public convenience and necessity require this avenue. 
We find that there is an unusual and unanimous complaint about 
the main highway to South Boston, which is through Federal 
Street, formerly Sea Street. This street is circuitous, crowded, 
and, from the nature of its population and the business carried 
on there, is very inconvenient and undesirable as a principal 
thoroughfare to such an important portion of the City. We 
need not enlarge upon the advantages of wide, straight, and 
cleanly avenues, or the reasonableness of the demands for them. 
Indeed we consider that we are not granting any favor, but that 
we are complying with a just and legal requirement, when we 
comply with such a call. The avenue which we recommend will 
lead from some point near the foot of Summer Street, or the 



6 CITY DOCUMENT. — No. 58. 

junction of Congress Street, in a straight line to tlie City's lauds 
in Soutli Boston ; and when it is laid out, sixty-six feet in width, 
it will he a puhlic improvement worthy of the City and valuahle 
to the puhlic. 

That South Boston has peculiar claims for this improvement 
cannot he, with any fairness, denied by those who know the his- 
tory of this portion of the City. When it was annexed to the 
City proper the streets were all regularly and carefully laid out 
in the most convenient manner, and of very liberal width ; and 
these highways, thus laid out, amounting to many miles of valu- 
ahle and necessary streets, were all given to the City without 
compensation. Besides this, the long bridge from Dover Street 
and the Federal Street Bridge were given to the City as free 
bridges, without compensation. 

By comparison with other portions of the City, the rights of 
South Boston are much more apparent. East Boston has a much 
smaller population than South Boston, yet within the past three 
years the City has spent, not in permanent avenues which would 
aid the City property, but in gratuities to the two ferry com- 
panies, nearly four hundred thousand dollars. This great sum 
was given on the ground that it was the duty of the City to facil- 
itate communication between the different portions of the City. 
But the present case is very much stronger. The same argu- 
ment may be applied, with equal if not with greater force, 
in the present case. There are several streets, such as Wash- 
ington and Hanover Streets, in each of which the City has spent 
more in merely widening the streets, within a few years, than 
is required for this important and valuable avenue. If we 
compare the expenditures at the south part of the City, or the 
value of the improvements near the Public Garden, the con- 
trast brings out in a still more forcible light the rights of South 
Boston. In a merely selfish view, this improvement is worthy 
of the attention of the City Government. The City owns nearly 
two millions of square feet of upland in South Boston, and about 
thirteen hundred thousand square feet of flats. This upland is 
situated upon a beautiful slope of the hill, commanding a fine 



EASTERN AVENUE. 7 

view of tlie City, the harbor, and the distant ocean ; and the loca- 
tion is the most desirable and healthy site for dwelling-houses 
within the limits of the City, and not surpassed in any sub- 
urban town. But the want of a convenient and desirable access 
has depreciated the value of this land, so that it is only valued 
by the city authorities at twenty-five cents per foot, and even at 
that price there is no demand for it. The proposed avenue 
would at once bring this whole body of land as near to the City 
Hall as Chester Park, where land, with all the disadvantages 
attendant upon made-land, now sells for ^1.50 to ;^2 per foot. 
The mere increase in the market value of the City's upland, com- 
puted at twenty-five cents a foot, which the most competent 
judges consider as a very moderate estimate, would be five hun- 
dred thousand dollars, a sum very much larger than the whole 
cost of the avenue. These considerations are not to be lost sight 
of, although your Committee cannot but feel that it is the duty 
of the City Government to carry out this great public improve- 
ment, even if it were not of such evident value to the City 
property. 

The question of the effect of the construction of this avenue 
upon the harbor of Boston has by no means been lost sight of ; 
and fortunately it is not a new question, or one upon which the 
Committee are obliged to consult their own judgment or experi- 
ence, without other aid. 

This very question has been considered for many years. It 
has been examined by numerous scientific commissioners, ap- 
pointed by the Legislature of Massachusetts, by boards of engi- 
neers appointed by the United States Government, and by surveys 
and examinations made under the direction of the City of Bos- 
ton. No question has been more carefully considered or more 
deliberately examined. The whole territory has been sounded, 
and numerous charts and maps made with the greatest accuracy. 
With a singular unaminity all the civil and military engineers, 
commissioners, and scientific and practical men have concurred 
in recommending a structure like the one in question. It would 
not be in our power to state the reasoning of these various elab- 



8' CITY DOCUMENT. — No. 58. 

orate and valuable reports. We may state generally, however, 
that the flats over which the avenue is to be constructed are 
" high flats," left bare at low tide, from which dirt, silt, and 
refuse matter are constantly washing into the channels. 

By building a straight sea-wall, this wash is prevented, and a 
direction is given to the current which enables it to scour out 
and deepen the channels, and thus benefit the harbor. In addi- 
tion to this, we ought to state that the last City Government 
decided not to take any action upon this subject until the Harbor 
Commissioners, appointed by the United States Government, 
would examine the question anew, and give the results to the 
City. This has been done, and they have advised your Commit- 
tee that the construction of this avenue would " not only not be 
an injury, but would be a 'positive benefit to the Harbor." 

There is another view which should not be lost sight of, and 
that is, that this valuable improvement will develop the whole 
South Boston shore, and render a large property useful, which 
otherwise must be comparatively valueless. Those Avho are 
familiar with the South Boston shore, know that there is a wide 
water front of over a mile in extent on the harbor. If there 
were any depth of water there it would be of great value ; unfor- 
tunately, however, it is cut oft' from the valuable waters of the 
harbor by this great area of high flats, which prevent access to 
the shore. 

Your Committee, however, attach much more importance to 
the immediate development of the uplands of South Boston than 
to the prospective improvement of the water front in the harbor. 
Tbe peninsula of South Boston has such a healthy and desirable 
situation, the drainage is so good, the air is so pure, and the 
natural advantages and beauties so numerous, that it will always 
be a favorite and most desirable residence. The only drawback 
is found in the disagreeable and repulsive streets by which only 
it is now accessible. We cannot fail to see that when this new 
avenue is made, the lands will be quickly taken up for resi- 
dences, thus giving the increased and desirable population which 
we so much need. It is well known to all who take an interest 



EASTERN AVENUE. 9 

in pur City affairs, that tliere is an alarming drain from the 
City of those active business men of moderate means, who are 
compelled to seek in the suburban towns the cheap residences 
where they can find pure air and healthy situations which 
cannot be obtained at any moderate price within the City 
limits. 

The non-residence of so many who do business in the City, and 
who should be its citizens, is a great evil. The class who reside 
out of the City chiefly, are the middle class, between the ex- 
tremes of wealth and poverty, the active energetic business men, 
who constitute the most valuable population of the City in every- 
thing except in that which is of the first consequence, its admin- 
istration and government, in which they have no voice. It was 
to remedy this evil that the City voted to annex Charlestown to 
its limits, and it is on this account, also, that the annexation of 
Eoxbury is so favorably received by so many, notwithstanding 
their annexation would involve the introduction of water to the 
annexed territory, and other large expenses. It was chiefly for 
the purpose of keeping its business men as citizens, that so many 
millions have been expended in making land in Wards Ten and 
Eleven. We do not doubt the judiciousness of this expenditure, 
but we believe that the proposed improvement, which will make 
our business men prefer the beautiful building sites at South 
Boston to the suburban towns, may be made with greater 
saving and benefit to the City by affording a convenient access 
thereto. 

The territory of South Boston is nearly as large as the orig- 
inal extent of the City proper, and there is no more desirable 
location for residences in Boston or its vicinity, with the single 
exception of its present want of a convenient access. It contains 
about thirty thousand inhabitants, and it has a capacity for at 
least one hundred thousand. From half to two thirds of its 
territory is not occupied or in any way improved. The valua- 
tion of its real estate, in 1860, Avas ten million two hundred and 
twenty-seven thousand six hundred dollars. If built upon, it 
would at least double in valuation. 



10 CITY DOCUMENT. — No. 58. 

Xotwitlistauding these facts, the access to the neighboring 
towns has for a long time been better and more convenient than 
that to South Boston, and as a natural consequence land has 
depreciated in value at South Boston, and can be bought for a 
less sum than is paid for land in neighboring towns twice the 
distance from State Street. 

A substantial avenue from Boston to the beautiful lands at 
South Boston Point, like the Milldam Avenue to Longwood, 
would largely increase the demand for residences and have a ten- 
dency to cover much of the unoccupied territory there with build- 
ings, which would very largely add to the present valuation. One 
of the petitions presented to your Committee contains the names 
of citizens whose aggregate tax exceeds ten millions of dollars, 
and it was testified by some of its signers that one of their ob- 
jects was to represent to the City, that in their view, the construc- 
tion of this avenue would so enhance the valuation of the City as 
to diminish the rate of taxation by increasing the population 
and adding to the property of the City, 

In conclusion, your Committee would say that the principal 
expense of constructing this avenue will be in labor, and that in 
their judgment it is best that no one should be employed who 
was not a resident in Boston in May last. We do not desire to 
bring laborers into the City who are chargeable to other cities 
or towns, nor do we wish to place this work in the hands of con- 
tractors whose only object is to get the work done in the cheapest 
manner, and pay in orders or otherwise as they might choose. 
We think it is better that the work should be done under the 
direction of our own officers, and with the supervision of a com- 
mittee of the City Government, and that such arrangement 
should be made that relief should be given to the laboring classes 
in every ward in the City, by dividing and apportioning the 
work, so all the members of the City Government could be con- 
sulted, and be able to give relief to those whom they know to 
be deserving, and in necessity. 

Your Committee have caused a careful examination of the 
territory to be made by the City Engineer, by whose judg- 



EASTEEN AVENUE. 11 

meut they have been guided as to the mode of constructing 
the avenue, and they recommend the passage of the following 
Kesolves. 

For the Committee, 

SAMUEL E. SPINNEY, Chairman. 

GEOEGE W. PAEMENTEE, 

BENJAMIN G. BOAEDMAN, 

HENEY SOUTHEE, 

JABEZ FEEDEEICK. 



Resolved, That, in the opinion of the City Council, the public 
convenience requires that the Eastern Avenue, running from the 
foot of L Street to the vicinity of Summer Street, as authorized 
by the Acts of the Legislature of this Commonwealth, should be 
constructed at an early date. 

Resolved, That, in the opinion of the City Council, it is expe- 
dient that the City of Boston should, at the present time, construct 
so much of said avenue as lies between the shore of South Bos- 
ton on the City lands at L Street and the riparian line described 
in Chapter 148 of the Acts of 1852,=''-= provided said work be done 
under the supervision of a joint committee of the City Council 
and the City Engineer. 

* See Sections One and Two of City Engineer's Eeport. 



APPENDIX. 



Office of City Engineer, Boston, September 18. 1861. 
Alderman Spinnet, Chairman of Committee on Eastern Avenue. 

Sir : In accordance with the vote of your Committee, instructing me to 
" cause a survey and estimate to be made for the proposed avenue from near 
the foot of Summer Street to L Street, South Boston, together with the esti- 
mated expense of a proper bridge across Fore Point Channel ; also, what it 
would probably cost to repair the bridge of the New York Central Railroad 
Company, so that it would answer as a part of the proposed avenue," a party 
was set at work, as a preliminary matter, to take soundings on the line of the 
proposed structure, to learn the kind of bottom on which it is to rest. 

Inasmuch as the Act of the Legislature does not definitely locate the end of 
the structure in Boston proper, three lines of soundings have been taken, at 
distances of 100 feet apart, over the whole Jine of G,200 feet. Three lines were 
sounded, because the desire was to have a full knowledge of the nature of 
the kind of bottom, in order to make an estimate fully ample to cover the 
cost of the structure on the worst line, if there should be found to be any 
essential diflference. 

The difference however in the bottom on the three lines, is found to be so 
slight, that the structure may be built anywhere witliin the three lines without 
any appreciable difference in its cost. 

The Act of the Legislature requires the avenue to be a solid structure, 100 
feet wide from L Street, the extreme easterly end in South Boston, to the 
riparian line, or one-hundred- rod line from high-water mark. The estimate 
for this portion has accordingly been made for such a structure. 

The remainder of the structure may, by the terms of the Act, be either a 
pile bridge or a solid structure, as the Mayor and Aldermen of Boston may 
decide. 

All that portion of it contained between the riparian line above spoken of 
and the easterly side of Fore Point Cliannel is not to exceed 100 feet in width ; 
and all the bridge portion of the structure which crosses Fore Point Channel 



APPENDIX. 13 

is, by the Act, not to exceed 66 feet in width. The estimates are made for this 
portion to be GG feet in width. 

The whole of tlie structure is also to be built under the direction of three 
Commissioners, to be appointed by the Governor and Council, and the whole 
to have suitable draws, or sluiceways, for the free passage of vessels and of 
the tide in both directions. 

It is proposed to build the whole structure solid, except the draws and the 
bridge over Fore Point Channel ; because if a bridge should be built now. it 
would eventually have to be filled up solid, adding a useless expense to its 
final cost. 

The area of South Bay is about three hundred acres. Fore Point Channel, 
in its narrowest part, between Dover Street and Federal Street Bridges is, 
after allowing for obstructions by the piles of the Old Colony Bridge and the 
wharves, equal to an open way of about three hundred feet in width, which 
gives a free current to the tide, which is not so swift as to be objectionable. 

The water area of the flats which will be enclosed by the avenue, as pro- 
posed, will be about two hundred acres, with more shoal water than the South 
Bay has. 

The Boston Wharf Company now have an open way tlirough their wharf 
leading into this space, of 110 feet, in its narrowest part. Making allowance 
for the piles in it, leaves it fully equal to a clear water-space of 100 feet in 
width. Taking these things into view, it has been thought that two draws and 
one sluiceway, with openings in each of 34 feet in the clear — without taking 
into account the spaces among the piles of each of the structures — would give 
ample water-way for the ebb and flow of the tide, and without giving the cur- 
rents objectionable velocity. 

The draws of what was the New York Central Eailroad Bridge have now 
one clear water-way of 41| feet, and one of 42^ feet. 

The bridge for the proposed avenue, if built anew, will probably be outside, 
or north of the railroad bridge ; and it is therefore proposed to have the 
bridge for it with two similar openings to those of the railroad bridge. 

The width of the present railroad bridge is but 26 feet. The new one is pro- 
posed to be sLxty-six (66) feet in width. 

The plan shows the avenue as starting from Bull's "Wharf. This wharf has 
only been taken for convenience, to show the full length of the avenue on the 
Plan, it being understood that the avenue and bridge may end anywhere 
within the limit of two or three other wharves, north or south of Bull's 
Wharf, depending very much on the price demanded by the owners for 
their wharves. 

The estimates, as presented, do not include the cost of any property; that 
not being included in the vote of instructions to the City Engineer. 

On much the largest portion of the line of structure the soundings show a 
very firm bottom, fully ample to sustain the walls and filling without pile 
foundations. 

There are two sections, of about one thousand feet each in length, which 



14 CITY DOCUMENT. — No. 58. 

will require the foundations to be dredged out a few feet, in order to drive 
piles and fill up with gravel. The estimates have been made accordingly. 

All that portion of the structure commencing at the shore-line, in South 
Boston, at L Street, for a distance of about sixteen hundred feet, to the most 
easterly draw proposed, is on good bottom. It will be the most economical 
method of construction to begin with this end, the material for the filling being 
more conveniently obtained for this portion of the structure than for any other 
portion of it ; and if all or the greater portion of the filling should be obtained 
from South Boston, as is most likely, then the only feasible way will be to 
begin at this end. 

The construction of this portion will also give employment to a greater 
number of laborers, in a given time, than will the construction of any other 
portion of the avenue of a similar length. 

As it is proposed to have very ample water-ways for the ebb and flow of 
the tide, and as the heavy storms which create high waves come from the 
northeast, or outer side of the structure, and the water inside being in all 
cases comparatively still water, the plan proposed is to build a heavy stone 
wall, (to be well ballasted,) on the outer or sea-side, and on each side of the 
draw-ways inside, returning the wall of each of them a distance of one hun- 
dred feet inside, leaving the earth to take such slope as will be made by the 
flow of the tide on the remainder of the inside of the structure, and protect- 
ing all the rest of the slope with a rip-rap or rubble wall where it is in danger 
of washing. A full wall the entire length of the inside would make the struct- 
ure cost somewhat more, although there would be less filling required in that 
case. It would not be any better when done than the method proposed. 



ESTIMATE OF COST. 

Section First — extending from the South Boston shore to the most easterly 
draw. Length 1,600 feet. 

14,000 squares earth filling, at $ 2.25 . . $ 31,500 00 
7,500 cubic yards of wall, at $ 2.00 . . . 15,000 00 
11,500 tons of ballast, at 60 cents . . . 6,900 00 



53,400 00 



Section Second — between the easterly and middle draw. 1,000 
feet long. 

7,500 square earth filling, at $ 2.50 . . $ 18,750 00 
5,500 cubic yards of wall, at $2.00 . . 11,000 00 

7,000 tons of ballast, at 60 cents . . . 4,200 00 

3.000 piles under wall, at $ 2.25 . . . 6,750 00 

1,200 squares earth filling in trench, at $ 4.00 . 4.800 00 



45,500 00 



Amount carried forward, $ 98,900 00 



APPENDIX. 15 

Amount brought forward, $ 98,900 00 

Sectio7i Third — between the middle draw and westerly 
sluiceway. 1000 feet long. 

7,500 squares earth filling, at $ 2.50 . . $ 18,750 00 

5,500 cubic yards wall, at $ 2.00 . . . . 11,000 00 
7,000 tons of ballast, at 60 cents . . . 4,200 00 

33,950 00 

Section Fourth — from the westerly sluiceway to Fore Point 
Channel. 1 ,900 feet long. 

14,000 squares earth filling, at $ 2.50 . . f 85,000 00 
9,300 cubic yards wall, at $ 2.00 . . . 18,000 00 

18,300 tons of ballast, at 60 cents . . . 7,980 00 

3,000 piles under wall, at $ 2.25 . . . 6,750 00 

1,200 squares filling in trench, at $4.00 . 4,800 00 

73,130 00 

Two draw bridges, including piers 50,000 00 

Bridge over Fore Point Channel 40,000 00 



Total cost equal $ 295,980 00 

To repair the old railroad bridge over Fore Point Channel will cost 
$ 12,000, but being only twenty-six feet in width, it will not of itself be wide 
enough to answer for the avenue bridge, although if the location should be 
made over it, it will answer for a portion of the avenue bridge. 
KespectfuUy submitted, 

JAMES SLADE, 

City Engineer. 



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